P L A N N I N G C O M M I T T E E R E P O R T Agenda Item 5.9 5 February 2008

GOVERNMENT APPROVAL PROCESS FOR THE PROPOSED ROAD LINK BEWTEEN PARKVILLE GARDENS AND BRUNSWICK ROAD

Division Sustainability and Regulatory Services

Presenter Shiran Wickramasinghe, Manager Planning and Building

Purpose

1. To advise the Committee of the State Government’s approval process for the road link between Parkville Gardens and Brunswick Road.

Recommendation from Management

2. That the Council:

2.1. Advise the Ministers for Planning and Roads that it opposes the proposed road link as detailed in Council’s June 2007 resolution on the matter;

2.2. Advise Major Projects Victoria that prior to any road works commencing a traffic management plan which outlines traffic measures to minimise through traffic must be prepared and approved by the relevant authorities, including the Cities of Melbourne and Moreland and Vic Roads; and

2.3. Advise Major Projects Victoria of Council’s preferred traffic management measures to minimise through traffic as outlined in this report.

Key Issues

3. In 2007 the State Government, through Major Projects Victoria (the government agency managing the development of the Parkville Gardens estate), put forward a plan for a road connection between the site and Brunswick Road, via Gibson Avenue. See attachment 1 for plan of the area.

4. The concept of such a link originated from the Advisory Committee recommendations established by the Minister for Planning in 1993 to consider the planning and design guidelines for the development of the site and which the Government supported at the time. The key purpose of the link was to facilitate a bus route through the site, as well as providing an additional access point to the site and improved integration with the surrounding area. See Attachment 2 for plans of road link.

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5. Following review of the proposal and consultation with a number of new residents from the area (who did not support the proposal), Council at its June 2007 meeting resolved to oppose the proposal primarily based on concerns regarding the potential adverse impact of through traffic. Key areas of discussion and concern identified at the time can be summarised as follows:

5.1. the traffic management measures would not be successful in deterring through traffic;

5.2. the view of the residents that the village was not an “enclave” and that the additional vehicle connection was not required to encourage connectivity and integration with the surrounding areas;

5.3. the bus route 504 was not necessarily required to run through the site and that with some modifications to existing bus stops on Brunswick Road this service could be made more convenient for the aged care facility; and

5.4. the focus of any public transport provided to the site should be to encourage connections with railway stations eg Royal Park Station.

6. Council subsequently advised Major Projects Victoria (MPV), interested residents and the City of Moreland of its formal position on the matter. At the time Council also wrote to the Minister for Public Transport regarding public transport initiatives for the site, in particular the upgrading of Flemington Bridge and Royal Park railway stations, particularly in respect to access and safety. Over the last few months there have also been a number of discussions with Department of Infrastructure officers in respect to the road link and the proposed bus route which is intended to use the link. At these discussions Council officers have reiterated the Council position on the matter.

7. In August last year MPV advised that despite noting the City’s position, it was proceeding with the matter as proposed primarily on the basis of the Government’s previous commitment to support the bus route and road link as outlined in the original approval process for the development. It is noted that both Mercy Aged Care and Port Phillip Housing Association (who manage the 82 social housing properties in the precinct) support the extension of bus route 504 through the area, with the former acknowledging the need to work with stakeholders to mitigate the impact of through traffic.

8. In December last year MPV advised Council officers that that the Minister for Roads, Tim Pallas, has declared the proposal a 'road project' under s.16 of the Road Management Act. The determination was gazetted in the Government Gazette on Thursday 20 December 2007. Under the determination, the Department of Infrastructure performs the powers of a coordinating road authority and is to consult at all times with the Melbourne and Moreland Councils and, so far as practicable, exercise its powers in accordance with any processes and policies that the Councils would follow if they were the coordinating road authorities.

9. The respective local planning controls in both cities of Melbourne and Moreland do not require a planning permit for the construction of roads.

10. However, MPV has recently advised that the Minister for Planning must grant approval to remove native vegetation located along the proposed route pursuant to the native vegetation clause in the Planning Scheme. Once this occurs the road project can proceed and MPV has indicated that all stakeholders, including residents will be advised of the project and associated details.

11. The area in question is located south of the existing Park Street road carriageway alignment. It is an area that has been known for community planting and that was planted by koori horticultural students in the mid 1990’s, using indigenous plants. Since then the area has not been maintained and is now in a poor condition. Advice from Council’s Parks area indicates that from a horticultural perspective the vegetation has no significance and that it could be readily altered or replaced to provide a greater level of amenity for nearby residents and the area in general.

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12. MPV will fund the re-landscaping associated with the new road link and further east along Park Street and has requested that Council provide comments on an indicative design prepared. See attachment 3 for indicative design. Note the this plan includes a community garden which is still subject to discussions with Council in respect to its viability, including demand, community support and on going management of such a facility. If the garden did not proceed the area would be landscaped by MPV in accordance with Council’s requirements.

13. MPV has requested that Council consider what traffic management measures it would like to be incorporated in order to deter through traffic. In respect to traffic management the options available are limited. The key area of concern will be the AM peak period and the issue of vehicles turning right from Brunswick Road into Gibson Avenue and then proceeding through the estate as a ‘short cut’ to avoid existing routes to the City that are already well utilised. It is estimated that 250 vehicles per hour would be attracted to this ‘short cut’ during the AM peak period if no action is taken.

14. The most effective means to minimise this problem would be the introduction of an AM peak hour right turn ban for all vehicles, other than buses, from Brunswick Road into Gibson Avenue between 7 and 9am. This would have to be approved by Vic Roads and Moreland City Council and as such a ban would impact on right turn access for Moreland residents in Gibson Avenue, the Reggio Calabria Club and the Genova International School of Soccer, there is a possibility that Moreland City Council would not support the ban. The intersection is within the Moreland City Council area. In addition, the aged care facility is proposed to have its service/delivery access from Gibson Avenue, so that any AM peak ban is likely to have an impact on this function.

15. Despite the potential inconvenience of the AM peak right turn ban to the above properties, access will still be possible using a left turn from Brunswick Road into Gibson Avenue. This is considered to be the preferred option for deterring through traffic in the AM peak.

16. If the AM peak right hand turn was introduced exemptions for buses could easily be programmed into the signal operation. The traffic signals at Brunswick Road/Gibson Avenue intersection have already been fitted with bus lanterns for both the right turn into Gibson Avenue and the left turn into Brunswick Road.

17. In the event that this ban was not approved another option that could be investigated would be to increase delays for the right hand turn movement by limiting the green time given to the movement. This increased delay would then deter many motorists from using the route. This would also require Vic Roads approval and would probably not be supported as such a measure would lead to unacceptable queuing in Brunswick Road, as well as disrupting bus movement into the precinct.

18. In addition, road cushions could be installed, which are positioned in such a manner as to allow buses to pass over them with minimum vertical displacement but still causing cars to negotiate them, thus slowing vehicles down and acting as a deterrent to through traffic.

19. It is not anticipated that the new link will cause the same level of through traffic concern in the PM peak as the number of vehicles able to access Manningham/Oak Street in the evening peak is limited by the restricted capacity of Church Street at Flemington Road. Reducing the green time to vehicles turning left or right into Brunswick Road should be supported by VicRoads and Moreland as the exclusive bus lane and bus signal would prevent delays to buses.

Attachments: 1. Plan of area 2. Plans of road link 3. Indicative design of landscaping on Park Street

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20. This is considered to be the preferred option for deterring any through traffic in the PM peak.

Time Frame

21. MPV have not advised a timeframe for the final approval required for the road project, however they advised that the application is currently with the Minister for Planning for consideration.

Consultation

22. Prior to resolving a position on the road link Council consulted interested residents and had discussions with other key stakeholders, including the City of Moreland and Mercy Aged Care and Health.

Background

23. At the June Council meeting Council resolved the following position on the matter.

“That Major Projects Victoria be advised that Council:

23.1. recommend no link from Willam Street to Gibson Avenue to prevent through traffic;

23.2. propose that there be no link from Willam Street to Park Street (Willam Street to be a cul-de-sac) and that a turning area be provided for large vehicles at the northern end of Willam Street;

23.3. support provision of direct road access to Aged Care facility from Gibson Avenue for deliveries;

23.4. support the use of a Community bus (from Aged Care facility) for access to Royal Park Station and other nearby destinations during morning and evening peak periods, and that its cost be subsidised by the Government;

23.5. seek government commitment to upgrade Royal Park Station and tram stop in order to encourage their use;

23.6. investigate the possibility of the existing bus service (route 504) stopping on Gibson Avenue; or

23.7. support the moving of existing bus stops in Brunswick Road being moved closer to Gibson Avenue for improved access to the aged care facility.”

24. In support of the above recommendation, this alternative approach was considered to have the following benefits:

24.1. no through traffic in Parkville Gardens;

24.2. better public transport access to train and CBD;

24.3. reasonable access to Bus Route 504;

24.4. cheaper alternative than providing the bus service through the site, and the construction of a parallel carriageway in Park Street;

24.5. more of indigenous planting area preserved; and

24.6. Park Street remains a cul-de-sac to improve amenity for residents by eliminating through traffic.

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Agenda Item 5.9 Planning Committee

5 February 2008

FINANCE ATTACHMENT

GOVERNMENT APPROVAL PROCESS FOR THE PROPOSED ROAD LINK BEWTEEN PARKVILLE GARDENS AND BRUNSWICK ROAD

There are no direct financial implications associated with the recommendations contained in the report.

Joe Groher Manager Financial Services

Agenda Item 5.9 Planning Committee

5 February 2008

LEGAL ATTACHMENT

GOVERNMENT APPROVAL PROCESS FOR THE PROPOSED ROAD LINK BEWTEEN PARKVILLE GARDENS AND BRUNSWICK ROAD

The Minister for Planning is the Responsible Authority for this application.

In making its decision, section 60(1)(c) of the Planning and Environment Act 1987 (“the Act”) requires the Responsible Authority to consider, amongst other things, all objections and other submissions which it has received, which have not been withdrawn.

Section 60(1A) further provides that:

“Before deciding on an application, the responsible authority, if the circumstances appear to so require, may consider –

(j) any other relevant matter;”

Section 64 of the Act sets out the procedure to be followed by the Responsible Authority in circumstances where objections are received.

Kim Wood Manager Legal Services